Order Code IB92115 CRS Issue Brief for Congress Received through the CRS Web Tactical Aircraft Modernization: Issues for Congress Updated March 16, 2006 Christopher Bolkcom Foreign Affairs, Defense, and Trade Division Congressional Research Service ˜ The Library of Congress CONTENTS SUMMARY MOST RECENT DEVELOPMENTS BACKGROUND AND ANALYSIS Background Tactical Aircraft in the U.S. Military Major Tactical Aircraft Programs Implications of Near-Term Decisions Analysis: Key Issues to Consider Affordability Capability Required Force Structure Service Roles and Missions Defense Industrial Base Modernization vs. Transformation Congressional Action FY2006 Congressional Action IB92115 03-16-06 Tactical Aircraft Modernization: Issues for Congress SUMMARY This Issue Brief examines DOD’s four may have important long-term implications. largest tactical aircraft modernization pro- The F/A-18E/F is in full-rate production. The grams. The background section provides a V-22, and the F-22 are now in transition from brief description of each program, and a dis- research-development (R&D) to procurement cussion of how tactical aircraft fit into military and could remain in production for decades. air operations: the missions they typically The next-generation combat aircraft that are perform and how they contrast to longer-range expected to result from joint-service efforts combat aircraft. now getting underway through the Joint Strike Fighter (JSF) program might be in production The Analysis section examines a number through the 2020s. Decisions about the fund- of policy issues including affordability, capa- ing of these programs will influence which bility required, force structure, service roles U.S. aircraft manufacturers survive in the and missions, industrial base, and transforma- aviation industry, and may well affect the tion. The paper concludes with a synopsis of division of combat roles and missions among recent congressional action on these programs. the services in the next century. The Defense Department plans to buy the Congress has questioned these tactical F-22 fighter for the Air Force, the F/A-18E/F aircraft modernization plans on grounds of fighter/attack plane for the Navy, and the V-22 affordability and requirements. Because of tilt-rotor aircraft for the Marines and Air Force the lack of consensus about future threats and special operations, as well as pursue a defense requirements, there has been increas- joint-service program to develop a multirole ing skepticism about the need for some of Joint Strike Fighter (JSF) aircraft in three these aircraft programs on grounds of cost and variants, some of which might be operational affordability, military requirements and force around 2012. levels, and effects on the defense industrial base. Debate has also emerged on the need to Decisions in Congress and the Defense balance modernization needs with military Department regarding these aircraft programs transformation goals. Congressional Research Service ˜ The Library of Congress IB92115 03-16-06 MOST RECENT DEVELOPMENTS The Bush Administration’s FY2007 defense budget included the following requests for tactical aircraft programs: F-22 — $2.7 billion; JSF — $5.2 billion; F/A-18E/F — $2.3 billion; EA-18G — $1.2 billion; V-22 — $2.2 billion. BACKGROUND AND ANALYSIS Background Tactical Aircraft in the U.S. Military Tactical or theater aircraft — fighters, fighter/attack planes, and attack planes — constitute a major component of U.S. military capability. They played a prominent role in the 1991 Gulf War, and are expected to play a leading role in contemporary and future military operations, particularly in situations where U.S. leaders hope to limit or avoid the commitment of U.S. ground forces. Operation Allied Force, the 1999 war in Kosovo, may have fueled these expectations. During this 78-day war, hundreds of coalition aircraft attacked Serbian targets, losing only two aircraft in the process. Navy tactical combat aircraft also played a prominent role in Operation Enduring Freedom, the war in Afghanistan. Tactical aviation accounts for a significant part of the defense budget, counting the costs of developing, procuring, and operating aircraft, engines, avionics, and weapon systems, and personnel, training, and administrative costs. The U.S. Air Force, Navy, and Marine Corps had a total inventory of some 5,000 fixed-wing tactical combat aircraft in 2005. Of these, the Air Force operated about 74% and the Navy and the Marine Corps about 26%. In addition to these fixed-wing combat aircraft, the DOD operates about 1,300 armed helicopters.1 This issue brief focuses on fixed-wing aircraft programs: the Air Force F-22, the Navy F/A-18E/F, the Marine Corps V-22, and the Joint Strike Fighter. These aircraft have been traditionally referred to as “tactical”aircraft to distinguish them from the Air Force’s B-52, B-1, and B-2 “strategic” bombers. When applied to aircraft, “tactical” generally refers to smaller and shorter-ranged planes, while “strategic” generally refers to larger and longer-ranged aircraft. Both tactical and strategic types are operated by USAF’s Air Combat Command, which in 1992 replaced Strategic Air Command (SAC) and Tactical Air Command (TAC). Reflecting the post-Cold War demise of SAC and TAC, tactical types are sometimes referred to as “theater aircraft.” Fighter planes primarily engage in air-to-air combat, either at close/visual range or at ranges requiring radar-guided missiles and stand-off munitions (including “precision-guided munitions”/PGMs). Attack planes focus on air-to-surface combat operations such as close air support (CAS) for friendly ground forces engaged in battle, battlefield air interdiction (BAI) against enemy forces behind the lines, and deep interdiction (also known as “deep strike”) against the enemy’s military, political, and industrial infrastructure. Fighter/attack 1 See CRS Report RL32447, Military Helicopter Modernization: Background and Issues for Congress, by Christian Liles and Christopher Bolkcom. CRS-1 IB92115 03-16-06 planes (also known as fighter-bombers, strike fighters, or multirole fighters) perform both air-to-air and air-to-surface missions. Long-range bombers and cruise missiles can also be used in BAI and deep strike operations. Different air-to-air and air-to-surface missions and different basing modes (sea- vs. land-based) give rise to different performance requirements for combat aircraft, making use of a common aircraft for different missions and services difficult, if not impossible, without major modifications. Major Tactical Aircraft Programs In response to an emerging congressional consensus and recommendations by the Defense Department’s 1993 Bottom-Up Review (BUR) of force structure requirements, the Clinton Administration decided in late 1993 to continue two major aircraft programs then underway — the F-22, a low-observable-to-radar (stealthy) fighter for the Air Force; and the F/A-18E/F version of the F/A-18 fighter/attack plane for the Navy — while also pursuing new aviation technology initiatives through the Joint Advanced Strike Technology (JAST) program, which later evolved into the Joint Strike Fighter (JSF) program. The Clinton Administration also supported procurement of the Marine Corps’ V-22 tilt-rotor aircraft, which had been opposed by the first Bush Administration on grounds of affordability. The George H. Bush Administration’s plan for modernizing U.S. tactical aircraft had focused on four key aircraft programs: (1) the F-22, (2) the F/A-18E/F, (3) the AFX, a stealthy attack/fighter aircraft to be developed for the Navy and Air Force, and (4) the Multi- Role Fighter (MRF), either a new aircraft or an upgraded version of the F-16 fighter/attack plane for the Air Force. Since there was no funding for the MRF and only minimal funding for the AFX, their rejection by the BUR in 1993 was more a recognition of their demise than the termination of viable programs. The Defense Department’s first Quadrennial Defense Review (QDR), released in May of 1997, recommended buying fewer tactical aircraft than was then projected, with reduced annual procurement of the F-22 and the F/A-18E/F and accelerated procurement of the V-22 tilt-rotor aircraft. Major tactical aircraft programs since the early 1990s are noted below. F-22 Raptor, built by Lockheed Martin and Boeing, features a stealthy design, advanced engines by Pratt and Whitney, and new avionics by Hughes and other subcontractors. It will replace the F-15 as the Air Force’s air superiority fighter. Like the F-15E, the F-22 will also have air-to-surface attack capabilities. The program was in competitive prototyping from 1986 to 1991 and then entered engineering and manufacturing development (EMD), with prototype flights beginning in 1997. On September 14, 2001 the Defense Acquisition Board (DAB) announced its much-awaited decision that the F-22 program had successfully completed EMD and was ready to move on to low-rate initial production. On December 15, 2005, the Air Force announced that a 12-aircraft detachment of F-22s had achieved initial operational capability (IOC). In recent years, the Air Force has stated a requirement for 381 Raptors. The Air Force’s FY2007 budget request, however, presents a plan to fund the production of F-22s through FY2010, for a total inventory of 183 aircraft. This proposed funding plan has raised concern among many, because it proposes to incrementally fund procurement and may require congressional waivers of statutory acquisition requirements. CRS-2 IB92115 03-16-06 F-22 Raptor F/A-18F Super Hornet The F/A-18E/F Super Hornet, built by Boeing (since its acquisition of McDonnell Douglas in 1997) and Northrop Grumman, is a larger and more expensive version of the current F/A-18C/D fighter/attack plane. It has more range/payload than that of existing F/A-18s and more potential for future modernization. The E/F version will replace the Navy’s older F/A-18s in fighter/attack missions and will eventually assume some missions now performed by F-14 fighters and formerly by A-6 attack planes.